[Congressional Record Volume 151, Number 69 (Monday, May 23, 2005)]
[Senate]
[Pages S5784-S5787]
From the Congressional Record Online through the Government Publishing Office [www.gpo.gov]

      By Mrs. MURRAY (for herself and Mr. DeWine):
  S. 1101. A bill to amend the Head Start Act to address the needs of 
victims of child abuse and neglect, children in foster care, children 
in kinship care, and homeless children; to the Committee on Health, 
Education, Labor, and Pensions.
  Mrs. MURRAY. Mr. President, today I rise with Senator DeWine to 
introduce the ``Improving Head Start Access for Homeless and Foster 
Children Act of 2005.''
  Head Start has made significant strides in providing comprehensive 
services to low-income children. Since

[[Page S5785]]

Head Start was established in 1965, low-income preschool-aged children 
have received education, health, nutritional, social and developmental 
services they would not otherwise have access to. Unfortunately, 
children in greatest need of these services--homelss and foster youth--
are not receiving those services at adequate levels.
  It is estimated that 1.35 million children experience homelessness 
each year, and the mean income of a homeless family is at 46 percent of 
the Federal poverty level. Due to extreme poverty and the inherent 
instability of homelessness, children facing these conditions have 
considerably higher physical, mental and emotional difficulties. It is 
not surprising that homeless children are reported to be twice as 
likely to have a learning disability and three times as likely of 
having an emotional or behavioral problem that interferes with their 
learning.
  These children also face significant barriers to participation in 
Head Start. These children lack transportation. They lack the necessary 
documentation. They suffer from the invisibility of homeless families 
which leaves the community unaware of the need to include these 
children in Head Start recruitment and prioritization. As a result of 
these and other barriers, only 15 percent of preschool children 
identified as homeless are enrolled in preschool programs of any kind, 
compared to the 57 percent of low-income preschool children. Currently 
only 2 percent of the more than 900,000 students served by Head Start 
are children identified as homeless. States report that 60 percent of 
homeless students are having difficulties gaining access to Head Start.
  In addition to homeless children, kids in foster care face a unique 
set of challenges which both increase their need for the stability and 
educational services provided by Head Start. Tragically, these same 
challenges also hinder their ability to gain access to those services. 
Foster children are likely to suffer from both emotional and physical 
instability. With more than 500,000 children in foster care and a 
shortage of foster parents in this country, these children often go 
without the attention and advocacy that preschool age children need.
  More than 40 percent of the children in homeless shelters are under 
the age of five. The first years of a child's life significantly impact 
personal development and future academic achievement. That is why I 
once again stand with Senator DeWine to increase access to Head Start 
for homeless and foster children.
  Our bill would ensure equal access and benefits from to early 
education and supportive services provided by Head Start for the 
Nation's poorest children. It would make all homeless children eligible 
for Head Start. The bill also allow homeless children to be immediately 
enrolled in Head Start by allowing them extra time to provided required 
documentation; providing that that documentation be in a reasonable 
time frame. And, our bill would require school, district liaisons to 
assist families in obtaining necessary documents. In addition, our bill 
increases Head Start's outreach to homeless and foster children. 
Further, the bill would reduce barriers by encouraging coordination 
between Head Start agencies and community programs that serve these 
vulnerable populations.
  Again, I would like to thank my colleague Senator DeWine for his many 
efforts in supporting homeless and foster youth. I urge the Senate to 
ensure that all children, despite their background and socioeconomic 
situation receive equal access to a quality education.
  I ask unanimous consent that the text of the bill be printed in the 
Record.
  There being no objection, the bill was ordered to be printed in the 
Record, as follows:

                                S. 1101

       Be it enacted by the Senate and House of Representatives of 
     the United States of America in Congress assembled,

     SECTION 1. SHORT TITLE.

       This Act may be cited as the ``Improving Head Start Access 
     for Homeless and Foster Children Act of 2005''.

     SEC. 2. DEFINITIONS.

       Section 637 of the Head Start Act (42 U.S.C. 9832) is 
     amended by adding at the end the following:
       ``(18) The term `family' means all persons living in the 
     same household who are--
       ``(A) supported by the income of at least 1 parent or 
     guardian (including any relative acting in place of a parent, 
     such as a grandparent) of a child enrolling or participating 
     in the Head Start program; and
       ``(B) related to the parent or guardian by blood, marriage, 
     or adoption.
       ``(19) The term `homeless child' means a child described in 
     section 725(2) of the McKinney-Vento Homeless Assistance Act 
     (42 U.S.C. 11434a(2)).
       ``(20) The term `homeless family' means the family of a 
     homeless child.''.

     SEC. 3. ALLOTMENT OF FUNDS; LIMITATIONS ON ASSISTANCE.

       (a) Quality Improvement.--Section 640(a)(3) of the Head 
     Start Act (42 U.S.C. 9835(a)(3)) is amended--
       (1) in subparagraph (B)--
       (A) in clause (ii), by inserting ``children in foster care, 
     children referred to Head Start programs by child welfare 
     agencies, '' after ``background''; and
       (B) in clause (v), by inserting ``, including collaboration 
     to increase program participation by underserved populations, 
     including homeless children, children in foster care, and 
     children referred to Head Start programs by child welfare 
     agencies'' before the period; and
       (2) in subparagraph (C)--
       (A) in clause (ii)(IV)--
       (i) by inserting ``homeless children, children in foster 
     care, children referred to Head Start programs by child 
     welfare agencies, '' after ``dysfunctional families''; and
       (ii) by inserting ``and families'' after ``communities'';
       (B) in clause (v)--
       (i) by inserting ``homeless children, children in foster 
     care, children referred to Head Start programs by child 
     welfare agencies,'' after ``dysfunctional families''; and
       (ii) by inserting ``and families'' after ``communities'';
       (C) by redesignating clause (vi) as clause (viii); and
       (D) by inserting after clause (v) the following:
       ``(vi) To conduct outreach to homeless families and to 
     increase Head Start program participation by homeless 
     children.''.
       (b) Collaboration Grants.--Section 640(a)(5)(C)(iv) of the 
     Head Start Act (42 U.S.C. 9835(a)(5)(C)(iv)) is amended--
       (1) by inserting ``child welfare (including child 
     protective services),'' after ``child care,'';
       (2) by inserting ``home-based services (including home 
     visiting services),'' after ``family literacy services''; and
       (3) by striking ``and services for homeless children'' and 
     inserting ``services provided through grants under section 
     106 of the Child Abuse Prevention and Treatment Act (42 
     U.S.C. 5106a ) and parts B and E of title IV of the Social 
     Security Act (42 U.S.C. 620 et seq. and 670 et seq.), and 
     services for homeless children (including coordination of 
     services with the Coordinator for Education of Homeless 
     Children and Youth designated under section 722 of the 
     McKinney-Vento Homeless Assistance Act (42 U.S.C. 11432)), 
     children in foster care, and children referred to Head Start 
     programs by child welfare agencies''.
       (c) Allocation of Funds.--Section 640(g)(2) of the Head 
     Start Act (42 U.S.C. 9835(g)(2)) is amended--
       (1) in subparagraph (C)--
       (A) by inserting ``organizations and agencies providing 
     family support services, child abuse prevention services, 
     protective services, and foster care, and'' after 
     ``(including''; and
       (B) by striking ``and public entities serving children with 
     disabilities'' and inserting ``, public entities, and 
     individuals serving children with disabilities and homeless 
     children (including local educational agency liaisons 
     designated under section 722(g)(1)(J)(ii) of the McKinney-
     Vento Homeless Assistance Act (42 U.S.C. 
     11432(g)(1)(J)(ii)))'';
       (2) in subparagraph (F), by inserting ``and homeless 
     families'' after ``low-income families''; and
       (3) in subparagraph (H), by inserting ``(including the 
     local educational agency liaison designated under section 
     722(g)(1)(J)(ii) of the McKinney-Vento Homeless Assistance 
     Act (42 U.S.C. 11432(g)(1)(J)(ii)))'' after ``community 
     involved''.
       (d) Enrollment of Homeless Children.--Section 640 of the 
     Head Start Act (42 U.S.C. 9835) is amended by adding at the 
     end the following:
       ``(m) The Secretary shall issue regulations to remove 
     barriers to the enrollment and participation of homeless 
     children in Head Start programs. Such regulations shall 
     require Head Start agencies to--
       ``(1) implement policies and procedures to ensure that 
     homeless children are identified and prioritized for 
     enrollment;
       ``(2) allow homeless children to apply to, enroll in, and 
     attend Head Start programs while required documents, such as 
     proof of residency, immunization and other medical records, 
     birth certificates, and other documents, are obtained; and
       ``(3) coordinate individual Head Start programs with 
     programs for homeless children (including efforts to 
     implement subtitle B of title VII of the McKinney-Vento 
     Homeless Assistance Act (42 U.S.C. 11431 et seq.)).''.

     SEC. 4. DESIGNATION OF HEAD START AGENCIES.

       Section 641(d)(4) of the Head Start Act (42 U.S.C. 
     9836(d)(4)) is amended--
       (1) in subparagraph (B), by inserting ``including providing 
     services, to the extent

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     practicable, such as transportation, to enable such parents 
     to participate'' after ``level''
       (2) in subparagraph (E)(iv), by striking ``; and'' and 
     inserting a semicolon;
       (3) in subparagraph (F), by inserting ``and'' after the 
     semicolon; and
       (4) by adding at the end the following:
       ``(G) to meet the needs of homeless children (including, to 
     the extent practicable, the transportation needs of such 
     children), children in foster care, and children referred to 
     Head Start programs by child welfare agencies;''.

     SEC. 5. QUALITY STANDARDS; MONITORING OF HEAD START AGENCIES 
                   AND PROGRAMS.

       Section 641A of the Head Start Act (42 U.S.C. 9836a) is 
     amended--
       (1) in subsection (a)(2)(B)--
       (A) in clause (iii), by inserting ``homeless children, 
     children being raised by grandparents or other relatives, 
     children in foster care, children referred to Head Start 
     Programs by child welfare agencies,'' after ``children with 
     disabilities,''; and
       (B) in clause (vi), by striking ``background and family 
     structure of such children'' and inserting ``background, 
     family structure of such children (including the number of 
     children being raised by grandparents and other relatives and 
     the number of children in foster care), and the number of 
     homeless children''; and
       (2) in subsection (c)(2)(C), by striking ``disabilities)'' 
     and inserting ``disabilities, homeless children, children 
     being raised by grandparents or other relatives, children in 
     foster care, and children referred to Head Start programs by 
     child welfare agencies)''.

     SEC. 6. POWERS AND FUNCTIONS OF HEAD START AGENCIES.

       Section 642 of the Head Start Act (42 U.S.C. 9837) is 
     amended--
       (1) in subsection (b)--
       (A) in paragraph (6), by inserting ``mental health services 
     and treatment, domestic violence services, and'' after 
     ``participating children'';
       (B) in paragraph (10), by striking ``; and'' and inserting 
     a semicolon;
       (C) in paragraph (11)(B), by striking the period and 
     inserting ``; and''; and
       (D) by adding at the end the following:
       ``(12) inform foster parents or grandparents or other 
     relatives raising children enrolled in the Head Start 
     program, that they have a right to participate in programs, 
     activities, or services carried out or provided under this 
     subchapter.'';
       (2) in subsection (c), by inserting ``, the agencies 
     responsible for administering section 106 of the Child Abuse 
     Prevention and Treatment Act (42 U.S.C. 5106a), parts B and E 
     of title IV of the Social Security Act (42 U.S.C. 620 et seq. 
     and 670 et seq.), and programs under subtitle B of title VII 
     of the McKinney-Vento Homeless Assistance Act (42 U.S.C. 
     11431 et seq.), homeless shelters, other social service 
     agencies serving homeless children and families,'' after 
     ``(42 U.S.C. 9858 et seq.)''; and
       (3) in subsection (d)(2)--
       (A) in subparagraph (A), by striking ``; and'' and 
     inserting a semicolon;
       (B) in subparagraph (B), by striking the period and 
     inserting ``; and''; and
       (C) by adding at the end the following:
       ``(C) collaborating to increase the program participation 
     of homeless children.''.

     SEC. 7. HEAD START TRANSITION.

       Section 642A of the Head Start Act (42 U.S.C. 9837a) is 
     amended--
       (1) in paragraph (2), by inserting ``local educational 
     agency liaisons designated under section 722(g)(1)(J)(ii) of 
     the McKinney-Vento Homeless Assistance Act (42 U.S.C. 
     11432(g)(1)(J)(ii)),'' after ``social workers'';
       (2) in paragraph (5), by inserting ``and family outreach 
     and support efforts under subtitle B of title VII of the 
     McKinney-Vento Homeless Assistance Act (42 U.S.C. 11431 et 
     seq.)'' before the semicolon;
       (3) in paragraph (6), by striking ``; and '' and inserting 
     a semicolon;
       (4) in paragraph (7), by striking the period and inserting 
     ``; and''; and
       (5) by adding at the end the following:
       ``(8) developing and implementing a system to increase 
     program participation of underserved populations, including 
     homeless children.''.

     SEC. 8. PARTICIPATION IN HEAD START PROGRAMS.

       Section 645(a)(1) of the Head Start Act (42 U.S.C. 
     9840(a)(1)) is amended--
       (1) in subparagraph (B), by striking clause (i) and 
     inserting the following:
       ``(i) programs assisted under this subchapter may include--
       ``(I) participation of homeless children, children whose 
     families are receiving public assistance, children in foster 
     care, and children who have been referred to a Head Start 
     program by a child welfare agency; or
       ``(II) to a reasonable extent, participation of other 
     children in the area served who would benefit from such 
     programs,

     whose families do not meet the low-income criteria prescribed 
     pursuant to subparagraph (A); and''; and
       (2) in the flush matter following subparagraph (B), by 
     adding at the end the following: ``A homeless child shall 
     automatically be deemed to meet the low-income criteria.''.

     SEC. 9. EARLY HEAD START PROGRAMS FOR FAMILIES WITH INFANTS 
                   AND TODDLERS.

       Section 645A of the Head Start Act (42 U.S.C. 9840a) is 
     amended--
       (1) in subsection (b)--
       (A) in paragraph (4), by inserting ``(including parenting 
     skills training, training in basic child development, and 
     training to meet the special needs of their children)'' after 
     ``role as parents'';
       (B) in paragraph (5)--
       (i) by inserting ``(including home visiting and other home-
     based services)'' after ``with services'';
       (ii) by striking ``disabilities)'' and inserting 
     ``disabilities and homeless infants and toddlers (including 
     homeless infants and toddlers with disabilities)); and
       (iii) by striking ``services);'' and inserting ``services, 
     housing services, family support services, and other child 
     welfare services);''; and
       (C) in paragraph (8), by inserting ``, and the agencies 
     responsible for administering section 106 of the Child Abuse 
     Prevention and Treatment Act (42 U.S.C. 5106a) and parts B 
     and E of title IV of the Social Security Act (42 U.S.C. 620 
     et seq. and 670 et seq.)'' before the semicolon; and
       (2) in subsection (g)(2)(B)--
       (A) in clause (iii), by striking ``; and'' and inserting a 
     semicolon;
       (B) in clause (iv), by striking the period and inserting 
     ``; and''; and
       (C) by adding at the end the following:
       ``(v) providing professional development designed to 
     increase the program participation of underserved 
     populations, including homeless infants and toddlers, infants 
     and toddlers in foster care, and infants and toddlers 
     referred by child welfare agencies.''.

     SEC. 10. TECHNICAL ASSISTANCE AND TRAINING.

       Section 648 of the Head Start Act (42 U.S.C. 9843) is 
     amended--
       (1) in subsection (c)--
       (A) in paragraph (2), by striking ``disabilities)'' and 
     inserting ``disabilities, children in foster care, and 
     children referred by child welfare agencies)'';
       (B) in paragraph (5), by inserting ``, including the needs 
     of homeless children and their families'' before the 
     semicolon;
       (C) in paragraph (10), by striking ``; and'' and inserting 
     a semicolon;
       (D) in paragraph (11) by striking the period and inserting 
     ``; and''; and
       (E) by adding at the end the following:
       ``(12) assist Head Start agencies and programs in 
     increasing the program participation of homeless children.''; 
     and
       (2) in subsection (e)--
       (A) by inserting ``training for personnel providing 
     services to children determined to be abused or neglected, 
     children receiving child welfare services, and children 
     referred by child welfare agencies,'' after ``language),''; 
     and
       (B) by inserting ``and family'' after ``community''.

     SEC. 11. RESEARCH, DEMONSTRATIONS, AND EVALUATION.

       Section 649 of the Head Start Act (42 U.S.C. 9844) is 
     amended--
       (1) in subsection (a)(1)(B), by striking ``disabilities)'' 
     and inserting ``disabilities, homeless children, children who 
     have been abused or neglected, and children in foster care''; 
     and
       (2) in subsection (c)(1)(B) by inserting ``, including 
     those that work with children with disabilities, children who 
     have been abused and neglected, children in foster care, 
     children and adults who have been exposed to domestic 
     violence, children and adults facing mental health and 
     substance abuse problems, and homeless children and 
     families'' before the semicolon.

     SEC. 12. REPORTS.

       Section 650(a) of the Head Start Act (42 U.S.C. 9846(a)) is 
     amended--
       (1) in the matter preceding paragraph (1), by striking 
     ``disabled and'' and inserting ``disabled children, homeless 
     children, children in foster care, and'';
       (2) in paragraph (8), by inserting ``homelessness, whether 
     the child is in foster care or was referred by a child 
     welfare agency,'' after ``background''; and
       (3) in paragraph (12), by inserting ``substance abuse 
     treatment, housing services,'' after ``physical fitness''.

  Mr.DeWINE. Mr. President, today I join with Senator MURRAY to 
introduce the ``Improving Head Start Access for Homeless and Foster 
Children Act of 2005.'' The problems children who are homeless and in 
foster care face are daunting. I am grateful to Senator Murray for her 
leadership in this area. She and I worked on coordinating and improving 
access to services for homeless and foster children in the Individuals 
with Disabilities Education Act (IDEA), and I am glad to have had the 
opportunity to work with her again on this issue.
  Who is more vulnerable than a child, under the age of five, living on 
the street or in a shelter? Who is more vulnerable than a child under 
five who has been abused and neglected? Just because young children 
cannot speak to their needs does not mean that they should have no 
voice. The hundreds of thousands of children in the United States who 
experience homelessness, separation from their parents, or abuse and 
neglect each year are in need of our help to ensure their needs are 
met. Unfortunately, their voices are all too often not heard and their 
needs go unmet. The bill we are introducing

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today would serve as one more step, one move closer, to ensuring 
homeless and foster children are visible and their voices audible.
  In the United States, on any given day, more than half a million 
children are in foster care, 20,000 of whom are in my home State of 
Ohio, alone. Of this group, 27 percent are age five and--under. In 
2003, we also know that more than 900,000 children were found to be 
victims of child abuse or neglect. Children as young as six months old 
can suffer from long-term effects after experiencing or witnessing 
trauma. More than half of the children in foster care experience 
developmental delays. Children in foster care have three to seven times 
more chronic medical conditions, birth defects, emotional disorders, 
and academic failures than children of similar socioeconomic 
backgrounds who never enter foster care.
  In its 2000 Report to Congress, the U.S. Department of Education 
noted that only 15 percent of preschool children identified as homeless 
were enrolled in preschool programs. In comparison, 57 percent of low-
income preschool children participated in preschool in 1999. These 
statistics are especially troubling in light of the fact that over 40 
percent of children living in shelters are under the age of five--an 
age when early childhood education can have a significant positive 
impact on a child's development and future academic achievement.
  Head Start began in 1965, and since its inception, it has served more 
than 22 million of America's poorest children. This important program 
has helped these children build the skills they need to succeed in 
school and provide them with the services they need to be healthy and 
active in society. With its comprehensive services and family-centered 
approach, Head Start often offers the most appropriate educational 
setting for children and families experiencing homelessness and for 
children in foster care. By providing comprehensive health, nutrition, 
education, and social services, Head Start helps provide for the needs 
of these vulnerable children. And, with the passage of this bill, Head 
Start could help even more. Yet, programmatic and policy barriers 
continue to limit their access to and participation in Head Start. Some 
barriers to Head Start access are related to lack of coordination with 
child welfare agencies, high mobility, lack of required documentation, 
and lack of transportation.
  Our bill would encourage Head Start grantees to reduce these barriers 
by directing them to increase their outreach to homeless and foster 
children. It also would encourage coordination between Head Start 
grantees and community service providers and homeless and foster 
children. It would increase the coordination for these populations as 
they transition out of Head Start to elementary school and increase 
reporting requirements. And, it would allow homeless children to be 
automatically eligible for Head Start.
  Again, I thank my colleague, Senator Murray, for her leadership on 
this issue. I look forward to working with her to incorporate these 
ideas into the Head Start reauthorization bill currently being 
considered in the Health, Education, Labor, and Pensions Committee.
                                 ______